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DEO  8  . 

REPORT 


OF  THE 


Board  of  Control  and  Economy 


OF  THE 


STATE  OF  ALABAMA 


»         • 


JUNE  30,  1919 


TO  THE  GOVERNOR 


Montgomery,  Alabama. 

The    Brown    Printing    Company, 

State  Printers  and  Binders, 

1919. 


A* 

DLPL 


•  •.  :  ; 


REPORT  OF  THE  BOARD  OF  CONTROL  AND 

ECONOMY 


• 


1 1   > 


Montgomery,  Ala.,  June  30,  1919. 

To  His  Excellency, 

Thos.  E.  Kilby,  Governor, 
Montgomery,  Alabama. 

The  Board  of  Control  &  Economy  created  by  an  Act  of 
the  Legislature  in  February,  1919,  was  organized  in  ac- 
cord with  said  Act  in  March  following.  It  now  submits 
for  your  consideration  its  first  report. 

The  purpose  of  this  report  is,  first,  to  briefly  and  in 
summarized  form,  present  for  your  information  facts 
relating  to  the  ten  eleemosynary  institutions  now  under 
the  control  of  this  Board,  their  inter-relationships,  their 
relationship  to  the  Convict  Department,  and  the  general 
relationship  of  each  and  of  all  combined  to  the  State's 
economic  fabric;  and  second,  to  discuss  the  opportuni- 
ties of  the  Board  as  a  central  buying  and  business  agency 
for  the  State,  its  institutions  and  counties. 

This  report  must  be  brief  and  confine  itself  to  those 
matters  needing  immediate  change  or  improvement,  with 
only  such  other  statement  as  is  necessary  to  give  an  un- 
clouded view  of  the  past  and  present,  and  what  should 
be  the  future  policy  and  practice  to  maintain  the  best 
social  and  economic  situation  for  our  State  and  people. 

The  facts  are  presented,  not  in  criticism  of  our  institu- 
tions or  of  their  managements,  but  with  a  full  conscious- 
ness that  practically  all  of  the  past  development  has  been 
from  small  beginnings  made  possible  by  personal  dona- 
tions born  of  patriotic  vision,  and  these  beginnings  car- 


ried  forward  patiently  and  laboriously  by  bands  of  far- 
seeing,  humane  and  unselfish  citizens.  These  have  had 
inadequate  State  support,  and  the  present  conditions  are, 
under  the  circumstances,  marvels  of  accomplishment. 

The  foundations  laid,  now  give  to  the  State  opportuni- 
ties  for  great  educational  development,  and  immense  so- 
cial,  economic  savings. 

Recognizing  the  past  sacrifices  and  the  strivings  for 
accomplishment,  it  is  now  our  opportunity  to  bring  to 
these  mental  and  physical  plants  energy  that  will  so  com- 
bine and  correlate  their  purposes  as  to  make  possible 
greater  accomplishment  with  less  costly  and  wearing  ef- 
fort. 

The  Board  controls  the  business  and  financial  policies 
of  the  following  institutions : 

Alabama  Industrial  School  for  Boys,  Birmingham,  Ala. 

Alabama  Insane  Hospitals,  Tuscaloosa  and  Mt.  Vernon, 
Ala. 

Mercy  Home  Industrial  School,  Birmingham,  Ala. 

State  Training  School  for  Girls,  Birmingham,  Ala. 

Soldiers  and  Sailors  Home,  Mountain  Creek,  Ala. 

Alabama  Reform  School  for  Juvenile  Negro  Law 
Breakers,  Mt.  Meigs,  Ala. 

Academy  for  the  Blind,  Talladega,  Ala. 

Institute  for  the  Deaf,  Talladega,  Ala. 

School  for  Negro  Deaf  and  Blind,  Talladega,  Ala. 

It  acts  as  purchasing  agent,  upon  requisition,  for  all 
State  departments  and  bureaus  at  the  Capitol,  for  the 
Convict  Department  and  for  the  educational  institutions 
of  the  State. 

A  large  part  of  the  Board's  energy  has  been  directed 
for  the  past  three  months  in  securing  information  which 
is  now  combined  in  tables  A,  B  and  C  attached  hereto, 


the  summaries  of  which  show  institutional  facts  as  fol- 
lows : 

A — Population,  physical  properties,  deficit  in  mainte- 
nance June  1st. 

B — Main  articles  and  quantities  of  food  consumed. 

C — Main  articles  cloth  and  clothing  and  miscellaneous 
supplies  consumed. 

These  figures  are  approximate,  for  the  reason  that, 
while  records  seem,  in  all  cases,  to  have  been  kept  of  the 
cash  receipts  and  disbursements,  there  has  been  practi- 
cally no  system  of  accounts  that  check  the  physical  prop- 
erties accumulated,  or  show  the  amount  of  supplies  con- 
sumed and  what  part  of  these  supplies  were  produced  at 
the  different  institutions. 

The  Board  has  now  a  complete,  but  simple  system  of 
records  which,  after  July  1st,  will  monthly  reflect  all 
these  facts. 

The  summary  of  the  above  exhibits  show  that  of  the 
main  articles  of  food,  these  institutions  annually  con- 
sume   $     520,464.10 

Of  cloth,  clothing  and  miscellaneous  articles       809,364.80 


$  1,329,828.90 

A  reference  to  the  items  consumed  shows  that  the  arti- 
cles are  those  that  the  State  itself  can  produce  to  an 

extent  of $1,200,000 

For  a  four-year  period  we  have  a  possibility 
of  supplying  from  within  the  State 
and  its  institutions $4,800,000 

A  study  of  the  cloth  items  indicates  that  a  large  part 
of  this  cloth  and  clothing  either  is,  or  can  be,  produced 
in  connection  with  the  operations  of  the  Convict  Depart- 
ment and  its  cotton  mill  and  garment-making  division. 


We  are  making,  or  can  make,  sheetings,  osnabergs  and 
other  cloth  and  clothing  suitable  for  the  general  require- 
ments of  our  institutions. 

We  now  manufacture  cloth  in  the  Convict  Department, 
pay  a  commission  to  brokers  to  sell  it  at  wholesale  in  the 
Eastern  markets,  and  later  re-buy  for  our  institutions 
from  dealers  at  greatly  increased  prices  cloths  of  similar 
weight  and  quality. 

A  simple  illustration  of  this  is  found  in  the  following 
item :  The  inmates  of  the  Reform  School  for  Juvenile 
Negro  Law  Breakers  at  Mt.  Meigs,  about  325  in  number, 
use  about  three  suits  per  annum  of  pants  and  jumpers 
or  overalls,  of  a  weight  of  goods  and  character  of  make 
that  is  possible  to  furnish  complete  from  the  Convict  De- 
partment. The  difference  in  the  cost  of  these  garments 
as  bought  in  the  open  market,  and  the  cost  to  produce  by 
the  Convict  Department  is  approximately  40  cents  per 
suit.  We  use  approximately  1,000  suits  per  year,  so  that 
if  the  Convict  Department  furnishes  these  at  prices  now 
paid  by  the  school,  there  is  an  increased  earning  of  $400 
on  this  cloth  to  the  Convict  Department ;  or  if  furnished 
at  the  values  the  Convict  Department  is  now  securing  on 
its  sales,  a  decreased  cost  of  $400.00  to  the  school;  or  a 
division  of  the  saving  will  give  $200.00  additional  profit 
to  the  Convict  Department,  and  $200.00  saving  to  the 
school. 

We  are  buying  annually  thousands  of  gallons  of  syrup, 
millions  of  pounds  of  meal  and  hundreds  of  thousands  of 
pounds  of  meat.  Table  A  shows  that  the  institutions  of 
the  State  and  the  Convict  Department  own  some  13,000 
acres  of  land,  10,000  acres  of  which  are  of  a  reasonable 
fertility  and  of  a  character  to  produce  an  immense  variety 
of  food  stuff. 

Referring  again  to  the  Reform  School  for  Juvenile 
Negro  Lawbreakers,  there  is  ability  there,  on  account  of 


the  land  and  the  supply  of  labor,  to  produce  sufficient 
syrup  to  supply  all  of  the  needs  of  the  State  institutions 
at  a  saving  of  present  expenditures  on  the  one  side,  and 
profitable  training  and  use  of  energy  at  the  Reform  School 
on  the  other. 

The  consumption  of  canned  goods  is  already  large,  but 
can,  and  should  be,  greatly  increased,  in  order  to  give  a 
cheaper  and  better  balanced  food  ration. 

There  is,  particularly  at  the  insane  hospitals,  and  prac- 
tically at  all  the  institutions  opportunity  for  producing 
and  preserving  by  canning  or  drying  immense  quantities 
of  these  supplies. 

The  need  of  milk  and  butter  is  great.  Milk  and  its 
products  are  the  most  healthful  and  most  easily  digested 
foods,  and  largely  increased  quantities  should  be  used, 
both  by  the  old  and  young  inmates. 

Our  purchase  of  meats  and  compound  lards  is  an  enor- 
mous expense.  Certain  of  our  institutions,  and  especially 
our  Convict  Department,  can,  with  inmates  not  possible 
of  use  in  heavier  work,  profitably  and  advantageously 
produce  the  best  types  of  this  food. 

It  needs  no  argument  to  convince  one  who  studies  this 
information  that  possibly  the  best  work  this  Board  can 
accomplish  is  such  a  correlation  of  these  various  institu- 
tions as  will  enable  them  to  produce  largely  what  they 
consume,  and  to  so  use  the  surplus  products  of  each  in 
the  consumption  of  the  others  as  will  keep  within  the 
institutions  immense  sums  now  paid  out. 

While  producing  these  various  articles  consumed  by 
the  State  there  is  a  compelling  educational  advantage 
to  be  gained,  provided  the  purpose  in  the  beginning  is  to 
produce,  in  the  best  way,  the  best  breeds  and  varieties, 
and  to  make  of  the  different  State  institutions  educational 
exhibits  of  the  best  farming,  gardening,  cattle  and  hog- 
raising  and  dairy  methods  and  products. 


8 

In  the  end,  it  costs  no  more,  and,  in  fact,  costs  less,  to 
farm,  garden  and  dairy  in  the  best  way. 

The  Board  is  impressed  with  the  fact  that  80  per  cent 
of  the  population  of  Alabama  is  supported  either  directly 
or  indirectly  by  agriculture. 

If  the  inmates  of  our  institutions  are  so  employed  as  to 
give  them  practical  experience  and  training  in  the  best 
methods  of  farm,  garden  and  dairy,  they  are  fitted  to  go 
to,  or  to  return  to  the  farm,  not  only  equipped  for  self- 
support,  but  with  a  trained  knowledge  that  will  be  a  con- 
stant help  to  themselves  and  to  their  neighbors. 

The  Board  in  beginning  its  work,  has  been  most  for- 
tunate in  having  in  all  directions  the  sympathetic  and 
energetic  help  of  other  State  Departments  and  of  the  in- 
stitutions. In  addition  to  direct  investigations  made  by 
the  Board  in  its  visits  to  and  study  of  institutions  and 
problems,  it  has  had  able  assistance  from  the  Depart- 
ments of  our  great  agricultural  school  at  Auburn;  and 
by  the  State  Board  of  Health,  in  connection  with  the 
expert  knowledge  and  unstinting  work  of  the  manage- 
ment of  the  Bryce  Insane  Hospital.  Our  Prison  Inspec- 
tion Department,  Chief  Examiner  of  Public  Accounts, 
State  Highway  Department  and  many  others  on  whom  we 
have  called  from  time  to  time,  have  most  actively  and 
substantially  assisted  us.  This  help  from  the  State's  ad- 
ministrative machinery  has  enabled  the  Board  to  gather 
data  and  form  conclusions  which,  if  furnished  by  experts 
especially  hired  for  the  work,  would  have  cost  the  State, 
as  it  has  cost  other  states  in  beginning  such  work,  large 
amounts  of  money. 

Special  surveys  have  been  made  by  Mr.  Paul  T.  Schooly, 
under  the  direction  of  Prof.  G.  C.  Starcher,  of  the  Horti- 
cultural Department  at  Auburn,  and  of  the  State  Horti- 
cultural Society,  who  have  brought  to  their  assistance  the 


9 

trained  minds  in  our  farm  extension  development  and 
other  agencies  for  farm  improvement. 

These  surveys  cover  in  detail  the  agricultural,  horticul- 
tural, dairying  and  cattle  raising  conditions  and  oppor- 
tunities at  all  State  institutions  and  in  the  Convict  De- 
partment. Largely  from  these  the  Board  is  enabled  to 
present  the  preceding  facts,  and  to  say  that  with  proper 
direction  these  institutions  can  be  made  to  produce  nine- 
tenths  of  all  their  food  consumption  and  to  become  splen- 
did training  plants  and  educational  exhibits  of  the  best 
methods  of  farming. 

The  thorough  survey  made  through  the  help  of  our 
State  Board  of  Health  by  Dr.  Partlow,  of  the  Bryce  Hos- 
pital, assisted  by  Dr.  Thos.  H.  Haines,  of  the  National 
Committee  for  Mental  Hygiene,  has  given  us  a  record  of 
the  physical  and  mental  health  conditions  of  the  inmates 
of  our  institutions,  with  suggestions  that  make  a  basis 
for  doing  many  things  at  small  cost  that  are  economical 
and  helpful ;  and  recommendations  for  improvements  that 
may  be  made  from  time  to  time  as  our  opportunities  and 
finances  permit.    This  report  shows  that  at : 

The  Alabama  Boys  Industrial  School  there  are  of 

feeble-minded 14% 

The  State  Training  School  for  Girls  there  are  of 

feeble-minded 24% 

Mercy  Home  Industrial  School  for  Girls  there  are  of 

feeble-minded    13% 

Alabama  Reform  School  for  Juvenile  Negro  Law- 
breakers there  are  of  feeble-minded 26% 

We  have  a  list  of  the  individuals  making  up  these  per- 
centages. For  these  inmates  it  is  impossible  to  give 
proper  instruction  or  care  at  these  institutions,  but  in  the 
absence  of  other  arrangements  by  the  State  it  is  neces- 


10 

sary  that  their  care  be  undertaken.  The  institutional 
effort  for  education  is  entirely  wasted  in  these  cases,  as 
there  is  no  more  chance  of  applying  education  to  their 
mental  condition,  which  is  a  lack  of  mind,  than  there  is  a 
chance  of  producing  crops  on  a  tin  roof. 

There  are  certain  forms  of  specialized  training  and  care 
that  can  help  some  of  these  cases  to  become  partially 
normal  and  self-supporting ;  others  are  helpless  and  hope- 
less and  have  to  be  cared  for  during  their  natural  lives. 
The  cost  of  this  care  is  less  where  they  are  segregated 
than  where  they  are  scattered  into  various  institutions 
unfitted  for  them,  or,  worse,  where  they  are  left  to  wan- 
der aimlessly,  increasingly  and  often  criminally,  through 
our  outside  social  life. 

The  report  on  our  farm  conditions  makes  it  evident 
that  in  order  to  secure  the  best  correlation  of  these  facili- 
ties and  opportunities,  the  Board  of  Control  should,  from 
time  to  time,  be  able  to  direct  certain  minor  improvements 
at  particular  places,  and  to  temporarily  furnish  the  funds 
for  the  installation  of  plants  that  will  immediately  begin 
to  reduce  the  cost  of  maintenance  either  at  that  particu- 
lar institution  or  at  other  institutions.  For  instance,  a 
properly  constructed  potato  storage  house  may  be  essen- 
tial in  order  that  the  potato  production  of  an  institution 
may  be  saved  from  rot.  The  cost  of  this  may  be  $500.00 
io  $1,000.00,  The  institution  has  not  the  money,  but  if 
tie  Board  can  temporarily  furnish  it  and  start  this  small 
economy,  the  institution,  through  its  consequent  saving 
in  maintenance,  can,  by  monthly  payments,  repay  the 
Board.  This  same  process  can  apply  to  a  canning  plant, 
a  silo,  a  syrup-making  outfit  and  various  other  agencies 
to  be  installed  for  the  purpose  of  increasing  production 
and  decreasing  maintenance  cost. 

The  Board  should  be  supplied  with  a  small  revolving 
fund  upon  which  it  could  draw  from  time  to  time  for 


11 

such  use  by  the  institutions.  The  amounts  advanced 
would  be  returned  by  the  institutions  to  the  fund  and 
re-used  when  needed  in  some  other  direction.  The  fund 
would  never  be  permanently  spent,  but  kept  in  constant 
circulation. 

STATE  PURCHASING. 

In  taking  up  this  work  the  Board  finds  itself  hampered 
by  existing  laws  in  using  to  the  best  advantage  this  newly 
created  economic  facility. 

Under  Section  69  of  the  Constitution,  fuel  for  the  Capi- 
tol, stationery,  printing  and  binding  for  the  different 
State  departments  are  required  to  be  purchased  under 
"such  regulations  as  shall  be  prescribed  by  law    *  * 

and  all  such  contracts  shall  be  subject  to  the  approval  of 
the  Governor,  Auditor  and  Treasurer." 

Section  578  of  the  Code  makes  it  the  duty  of  the  Secre- 
tary of  State  to  prepare  and  execute  these  contracts,  and 
Sections  1647  to  1677  lay  down  in  detail  the  method  by 
which  the  Secretary  of  State  shall  be  governed.  These 
statutes  require,  among  other  things,  that  the  Secretary 
of  State  shall  biennially  receive  bids  for  the  furnishing  of 
these  supplies  and  performing  this  work,  and  that  under 
certain  conditions  he  shall  allot  the  contract  to  a  bidder 
for  a  period  of  two  years.  This  situation  leaves  the  Board 
with  no  alternative  but  to  give  to  these  contractors  from 
time  to  time,  orders  for  the  supplies  for  which  requisi- 
tions are  made  upon  the  Board.  The  Secretary  of  State 
with  his  numerous  other  duties  necessarily  could  not 
handle  the  buying  of  these  supplies  from  month  to  month, 
or  from  time  to  time,  as  the  best  economic  result  might 
require,  therefore,  the  necessity  under  the  old  plan  for 
the  biennial  contracts  and  the  detail  of  law  surrounding 
the  placing  and  execution  of  them. 


12 

Now  that  the  State  has  established  machinery  for 
doing  this  work,  it  should  get  the  benefit  of  that  machin- 
ery and  require  these  supplies  to  be  purchased  by  the 
Board  of  Control  in  accord  with  the  constitutional  direc- 
tion, but  otherwise  in  the  same  manner  as  it  purchases 
other  supplies  or  arranges  for  other  labor. 

To  show  the  uneconomic  results  of  the  old  system,  and 
with  the  criticism  directed  at  the  system  and  not  at  the 
bidders  who  have  to  operate  under  it,  we  wish  to  give 
one  or  two  illustrations.  It  is  not  the  intention  to  sug- 
gest that  all  purchases  result  in  such  loss  as  is  shown,  but 
to  show  what  may,  and  does  happen,  in  some  instances : 

The  bids  under  the  contract  let  by  the  Secretary  of 
State  are  taken  on  what  is  known  as  a  unit  basis.  The 
prices  for  each  article  in  the  list  are  added  together,  and 
the  bidder  who  presents  such  figures  as  produce  the  lowest 
result,  gets  the  contract.  If  a  bidder  has  knowledge  that 
certain  things  upon  which  he  is  asked  to  bid  will  not  be 
used,  or  will  be  used  in  very  small  quantities,  his  unit 
price  on  these  may  be  very  low.  In  fact,  may  be  far  be- 
low cost,  while  on  those  things  that  are  used  largely,  his 
price  may  be  very  high.  His  total  price  will  still  be  suf- 
ficiently low  for  him  to  get  the  contract,  with  the  result 
that  the  State  pays  very  much  more  than  a  reasonable 
price  for  those  things  it  is  using,  and  gets  no  benefit  of  the 
low  price  on  those  things  included  in  the  schedule  but  for 
which  it  has  none,  or  very  little  use.  To  illustrate  this 
point :  An  investigation  by  us  shows  that  the  price  bid  in 
different  years  for  furnishing  the  Notarial  Commissions 
which  the  Governor  uses  in  making  his  appointments  of 
Notaries  was  as  follows: 

Period  1912-14  Per  1,000 lc 

Period  1914-16  Per  1,000 $28.00 

Period  1916-18  Per  1,000 5.00 

Period  1918-20  Per  1,000 50.00 


13 

The  period  1912-14  was  the  latter  half  of  a  guberna- 
torial term  when  practically  all  Notarial  Commissions 
supplies  for  that  term  had  been  bought,  and  nearly  all 
Notaries  had  been  appointed  by  the  Governor  in  the  early 
part  of  his  term,  and,  therefore,  there  would  be  bought 
practically  no  supplies  of  these  seals.  A  bid  of  lc  reduced 
enormously  the  result  in  the  total  bid  without  the  State 
getting  any  advantage,  because  it  would  buy  none,  or  few 
of  these  seals.  A  new  Governor  comes  in  for  the  period 
1914-16  and  his  Notarial  supplies  will  be  bought  during 
that  period,  hence  the  advanced  price  to  $28.00.  Like- 
wise 1916-18  is  the  end  of  a  gubernational  period  when 
few  or  no  seals  are  bought,  hence  the  reduction  to  $5.00, 
whereas  again  1918-20  covers  the  induction  of  a  new 
Governor  with  the  purchase  of  large  quantities  of  seals 
and  the  advance  to  $50.00  per  1,000. 

Certain  classes  of  ink  of  which  the  State  had  consid- 
erable supplies  in  1912  and  1914  were  bid,  1  dozen 

quarts  lc 

1914-16  were  bid,  1  dozen  quarts $  7.20 

1916-18  were  bid,  1  dozen  quarts 10.80 

1918-20  were  bid,  1  dozen  quarts 18.00 

These  are  two  of  many  illustrations  that  might  be  sup- 
plied. The  result  to  the  State  is  obvious,  but  in  order 
that  we  might  have  something  definite,  the  Board  made 
an  investigation  of  prices  covering  a  large  number  of  sup- 
plies bought  under  March,  1919,  requisitions. 

In  twenty-five  of  these  requisitions,  articles  and  work 
placed  under  the  existing  contracts  cost  $2,937.65.  The 
Board  secured  prices  on  these  articles  from  various  print- 
ing and  stationery  houses  in  the  State,  which  prices  were 
not  for  wholesale  quantities,  but  retail  prices  at  which 
any  individual  could  buy  at  that  time.     Applying  the  low- 


14 

est  of  these  prices,  the  cost  at  which  the  State  could  have 
bought  at  retail  locally,  would  have  been  only  $2,314.31 
as  against  $2jo37.65,  a  loss  of  $623.34,  or  approximately 

23%. 

The  total  outlay  for  stationery  and  printing  in 

a  four-year  period  is $30,000.00 

A  saving  of  23%  would  be 6,900.00 

The  present  method  of  buying  fails  to  give  the  Board 
an  opportunity  to  buy  in  carload  quantities,  and  secure 
the  reduction  in  carload  prices  and  carload  freights. 

Since,  before  purchasing  it  requires  a  detailed  requisi- 
tion from  the  institution  and  advertising  for  ten  days 
before  order  is  placed,  it  also  prevents  the  Board  taking 
advantage  of  special  bargains.  For  instance,  the  Federal 
Government,  thirty  days  ago,  advertised  a  large  quantiy 
of  hams  which  they  wished  to  sell.  Our  requirements  for 
hams  are  large  in  the  aggregate,  but  requisitions  come,  in 
small  quantities  from  different  institutions.  We  are  pay- 
ing for  side  meat  from  26c  to  29c  per  pound.  For  hams 
32c  to  34c.  Some  of  these  hams  were  sold  to  other  con- 
sumers in  quantity  by  the  Government  at  from  15c  to  18c. 
The  Board  should  have  latitude  that  will  enable  it  to  use 
its  information  and  ability  in  buying  in  such  cases  for  the 
benefit  of  the  State  and  its  institutions,  and  of  assembling 
in  quantity  and  re-distributing  as  needed  to  the  institu- 
tions. 

In  buying  cotton  for  the  State  Cotton  Mills  at  Speigner, 
of  which  there  must  be  purchases  made  of  from  $500,000 
to  $600,000  per  annum,  it  is  practically  impossible  to  buy 
on  advertised  bids.  The  time  of  ten  days  required  for 
advertising,  with  the  additional  time  for  requisitions,  etc., 
might  mean  a  change  in  value  of  many  dollars  per  bale. 
We  have  seen  in  the  last  sixty  days  the  cotton  market 
advance  lie  per  pound,  decline  6c  per  pound  and  again 


15 

advance  7c  per  pound,  some  changes  amounting  to  $15.00 
per  bale  in  three  days. 

PURCHASES  FOR  COUNTIES. 

Through  the  assistance  of  Hon.  Charles  E.  McCall, 
Chief  Examiner  of  Public  Accounts,  and  Dr.  Glenn  An- 
drews, Prison  Inspector,  the  Board  has  been  enabled  to 
acquaint  itself  with  some  of  the  purchasing  conditions  in 
the  counties,  and  feels  sure  that  it  can  be  of  great  use  to 
them  in  making  their  purchases  along  certain  lines. 

The  books  of  record  and  many  forms  used  in  the  county 
offices  vary  from  county  to  county,  and  are  frequently 
changed  with  the  change  of  administration,  with  the  re- 
sult that  a  large  amount  of  these  supplies  purchased  are 
not  used,  but  are  filed  with  many  blank  pages. 

Section  5877  of  the  Code  requires  out-going  sheriffs  to 
file  their  books  with  the  probate  judges.  Should  this 
section  be  repealed,  and  the  out-going  sheriff  required  to 
take  a  reecipt  from  the  incoming  sheriff  for  the  books, 
the  incoming  sheriff  could  continue  to  use  the  unused 
pages  in  the  records  of  the  out-going  sheriff  and  thus 
save  the  purchase  of  new  books  with  every  change. 

Many  of  the  forms  for  books  in  the  counties  can  be 
standardized  and  ordered  in  quantity  to  be  distributed  to 
the  counties  on  requisition  as  they  need  them.  A  large 
part  of  the  cost  of  all  stationery,  where  special  ruling  is 
required,  as  in  county  records,  is  in  the  setting  up  of  the 
forms.  After  the  first  thousand  sheets  are  printed  the 
following  thousands  cost  only  the  value  of  the  paper,  ink 
and  time  of  the  press.  Wherever  forms  can  be  standard- 
ized for  the  67  counties,  each  county  can  get  the  benefit  of 
the  buying  in  quantities  in  connection  with  the  other 
66. 


16 

There  are  many  forms  for  small  printing,  such  as 
envelopes,  letter-heads,  etc.,  that  are  now  furnished  by 
local  printers  at  the  county  seats.  These  can  continue 
to  be  so  purchased,  as  it  may  be  done  there  at  less  cost 
and  more  convenience  than  is  possible  at  outside  points. 

In  the  purchase  of  equipment  and  supplies  for  the  jails 
and  almshouses  we  find  a  great  variation  in  prices  paid 
by  different  counties.  Each  county  seems  to  buy  for  im- 
mediate use,  and  not  until  the  need  is  upon  it ;  pays  fre- 
quently an  extra  price  for  immediate  delivery,  and  is 
limited  as  to  price  and  quality  to  what  happens  to  be  in 
the  stock  of  some  dealer  that  is  easily  reached. 

Through  the  Prison  Inspection  Department  the  proper 
standards  of  quality  and  weights  for  blankets  can  be 
fixed ;  the  character  of  hammocks  or  cots  decided  upon  and 
the  State  Board  then  by  bargaining  in  quantity  can  secure 
for  all  of  the  counties  the  best  wholesale  prices  for  stand- 
ard qualities.  Dr.  Andrews  suggested  that  it  would  be 
possible  to  save  the  purchase  of  many  blankets  if,  instead 
of  using  blankets  in  the  winter  to  cover  the  hammock 
upon  which  the  prisoner  lay,  that  cotton  pads  be  made 
with  two  coverings  of  sheeting,  which  coverings  could  be 
removed  and  laundered,  thus  keeping  the  pad  clean  and 
the  covering  fresh.  If  these  pads  were  decided  upon  and 
substituted  for  these  blankets,  used  in  lieu  of  mattresses, 
it  would  be  possible  to  have  these  and  the  sheeting  covers 
made  by  our  Convict  Department  at  a  great  saving  in  cost 
to  the  counties. 

In  consultation  with  the  Highway  Department  we  find 
that  many  supplies  for  constructing  the  highways  are  to 
be  bought  by  the  different  counties.  The  Board  should, 
in  consultation  with  the  Highway  Department,  know  the 
jiroper  qualities  of  steel  for  bridges,  cement  for  concrete, 
acr  mers,  trucks,  etc.,  for  the  roads,  and  through  quantity 


17 

buying  and  bargaining  secure  the  best  prices  for  the 
standards  required. 

Articles  like  electric  globes  which  are  used  in  quantities 
in  all  the  State  and  county  institutions  when  bought  in 
large  quantities  have  a  fixed  discount  below  prices  in 
smaller  quantities.  The  State  Board  can  contract  to  buy 
these  in  such  quantities  if  buying  for  the  whole  State  and 
its  counties  as  to  get  a  discount  of  33%  as  against  17% 
to  21%  now  secured  by  the  counties. 

Gasoline  is  sold  to  the  Federal  Government  at  present 
for  24 1/9 c  a  gallon.  We  find  the  State  Departments  and 
the  counties  paying  261,4c,  though  commercial  distribu- 
tors have  a  less  price.  The  Board  is  now  negotiating  on 
this  matter,  and  it  suggests  itself  that  there  is  no  good 
reason  why  the  State  Government  should  not  be  allowed 
by  the  oil  people  exactly  the  same  price  on  oil  as  they  sell 
to  the  Federal  Government,  the  State  Government  being 
finally  only  a  division  of  the  General  Government. 

Contracts  for  typewriters  can  be  made  by  a  central 
State  agency  for  the  benefit  of  all  counties  and  institu- 
tions at  large  discounts.  The  Federal  Government  does 
it.    Why  not  the  State? 

Investigation  indicates  a  possibility  of  savings  of  20% 
to  35%  in  inks,  paints  and  much  machinery,  and  10%  to 
20%  in  the  general  run  of  supplies. 

These  illustrations  are  given,  as  might  be  many  others, 
to  show  the  possibilities  of  service  by  the  Board  to  the 
county  governments.  The  stationery  supplies  and  record 
books  alone  bought  by  the  different  counties  in  the  State 
will  amount  to  not  less  than  $175,000  per  annum.  There 
should  be  in  quantity  bargaining  a  saving  in  this  of  20%, 
and  thare  should  be,  through  standardization  of  forms  an 
additional  saving  of  not  less  than  20%,  so  that  a  total  sav- 
ing this  item  alone  should  amount  per  year  to  $70,000.00 
or  for  a  four-year  period $280,000.00 


18 

A  standardization  that  would  save  considerable  money, 
both  in  the  State  departments  and  county  offices  would 
be  a  change  in  letter-heads  and  forms,  so  as  to  have  the 
office  shown  on  the  letter-head  or  the  form  rather  than 
the  individual  officer's  name.  The  Federal  Government 
in  its  departments  has  few  personal  forms,  but  each  de- 
partment has  its  letter-heads  or  record  forms  showing 
Ute  department  only,  as,  for  instance,  "Treasury  Depart- 
ment, Internal  Revenue  Collector's  Office,  Birmingham, 
Ala."  When  one  collector  follows  another  there  is  no 
need  for  the  changing  of  forms,  but  there  is  a  continua- 
tion of  the  established  standard. 

In  addition  to  books,  stationery,  etc.,  the  annual  county 

purchases  of  supplies  amounts  to  some $1,200,000 

or  for  a  four-year  period,  to $4,800,000 

Even  a  15%  savings  would  amount  amount  to $720,000 

Is  this  not  a  stake  worth  striving  for? 

INSURANCE. 

From  surveys  made  by  this  Board  and  by  the  State 
Department  of  Insurance  the  following  facts  are  devel- 
oped: 

The  State  has  properties  of  some  seven  millions  of 
dollars  upon  which,  at  the  present  time,  there  is  insurance 
effected  to  the  extent  of  some  three  and  one-half  millions. 
The  annual  insurance  premiums  are  approximately  thirty 
thousand  dollars,  and  the  average  annual  insurance  rate 
.894. 

Due  to  the  fact  that  in  many  instances  there  is  not  a 
knowledge  or  a  record  of  the  actual  value  of  buildings, 
some  of  these  are  insured  for  much  greater  amounts  than 
are  necessary,  and  some  are  under-insured.  The  insur- 
ance policies  are  not  uniform  in  their  wording  or  re- 
quirements, and  are  placed  from  time  to  time  by  many 


19 

different  officers  of  Boards  or  Trustees  or  other  State 
agencies. 

The  average  rate  of  .894  is  higher  by  10'^  to  20%  than 
the  average  rate  charged  to  some  other  states  for  similar 
insurance.  It  suggests  itself  to  the  Board  that  the  matter 
of  insurance  should  be  handled  by  one  State  agency,  and 
that  proper  investigations  should  be  had  to  know  the 
values  of  all  State  property,  to  properly  record  and  pre- 
serve these,  and  efforts  undertaken  to  do  the  things  neces- 
sary in  order  that  the  State's  charge  for  insurance  should 
not  be  greater  than  similar  charge  to  other  states.  The 
Board  of  Control  can,  and  probably  should,  take  care  of 
this  work. 

Similar  service  might  be  performed  for  the  counties. 

The  Board  finds  that  in  many,  if  not  all,  instances,  the 
State  and  its  institutions  are  paying  the  war  tax  of  10' ; 
on  insurance  policies,  which  is  improper.  The  State  is 
exempt  from  this  tax.  We  find  that  in  many  cases  the 
State  departments  and  institutions  are  unnecessarily  pay- 
ing Federal  transportation  taxes  for  both  persons  and 
property. 

RECOM  MENDATIONS. 

The  operations  of  the  Convict  Department  should  be 
combined  with  those  of  other  institutions  under  the  con- 
trol of  the  Board. 

The  Prison  Inspection  Department  of  the  State  should 
be  co-ordinated  with  the  work  of  the  Board,  for  the  rea- 
son that  in  this  department  there  is  medical  intelligence 
and  inspection  machinery  sufficient  to  do,  not  only  the 
work  now  being  done,  but  also  to  similarly  inspect  and 
control  the  State  institutions  and  the  Convict  Department. 

The  State's  insurance  should  be  handled  by  the  Board. 

The  convict  hospital  for  tubercular  and  other  patients 
of  long  detention  should  be  legally  placed  outside  the 


20 

penitentiary  that  convicts  confined  there  might  be  under 
temporary  parole.  This  would  make  the  facilities  avail- 
able for  use  of  the  sick  at  several  other  institutions  and 
eliminate  the  cost  of  supplying  these  facilities  at  each 
institution. 

The  present  law  requiring  the  Secretary  of  State  to 
contract  biennially  for  stationery,  printing,  binding  and 
fuel  should  be  repealed  and  this  duty  placed  upon  the 
Board. 

The  printing  of  reports  by  institutions  and  depart- 
ments is  a  large  expense.  A  study  of  the  requirements 
might  develop  a  need  of  printing  quadrennially  or  bien- 
nially instead  of  annually  and  greatly  lessened  number  of 
copies. 

The  law  creating  the  Board  should  be  amended  so  as 
to  give  it  such  latitude  as  to  enable  it  to  take  advantage, 
without  advertising,  of  special  opportunities  for  purchase. 

A  revolving  fund  of  $20,000.00  should  be  placed  at  the 
disposal  of  the  Board  for  temporary  use  by  different  insti- 
tutions. 

A  revolving  credit  of  $50,000.00  should  be  allowed  the 
Board  in  order  that  temporary  settlements  may  be  made 
for  goods  purchased  in  quantity  to  be  later  distributed 
to  the  institutions  upon  their  requisitions. 

The  counties  should  be  urged  to  use  the  facilities  here 
created  and  to  consult  and  co-operate  with  the  Board  in 
an  effort  to  reduce  their  costs. 

Section  5877  of  the  Code  requiring  the  filing  of  sheriff's 
books  with  the  probate  judge  should  be  repealed  and  such 
requirements  substituted  as  will  allow  one  sheriff  to  de- 
liver his  books  and  records  to  the  succeeding  sheriff. 

The  headings  for  letter  forms  and  records  in  all  State 
and  county  institutions  should  be  standardized  by  requir- 
ing merely  the  name  of  the  department  or  bureau  and  the 


Articles 


Units 


Flour    Bbls. 

Bread   Lbs. 

Meal   Lbs. 

Irish  Potatoes  Lbs. 


pqffi 


t;  o-h 
Sea 

O   a)   o 


1,800 

* 


600 

* 


124,000       90,000 
15,000     *45,000 


3 
C 

E°  o 
o  o 


42 
60,000 
37,300 
24,000 


(B  AND  C)— CONSUMPTION  OF  MAIN  ARTICLES  OF  FOOD.  CLOTH,  CLOTHING  AND  GENERAL  SUPPLIES 

.1;  '"'/,  r 

Units 

a 

S'S 

5  BO 

O    3;    O 

3 

■c 
c_ 

1—1  "o 
eo  o 

>>s: 

O    u 

Men 

P 

"5  bo 

u.s 

>?    a>  o  i    P  &-.  o     o  <2£ 
g    co      rioo:    oH 

■a 
s 

Is 

o.S 

25 

z  § 

m 

Oc/} 

c 

.St 

>  a 
a  a. 
o  a; 

W    CJ, 

e2< 

M_3 

o  rt 

Flour 

Bbls. 

Lbs. 

1,800 

* 

124,000 

15,000 

*  138,000 

36,000 

24,300 

17,300 

1,250 

700 

1,450 

50,000 

3,400 

25,450 

196,000 

800 

8,100 

14,200 

28,700 

22,000 

18,600 

26,000 

600 

* 

90,000 

•45,000 

•150,000 

22,200 

17. i 

•50,000 

42j         35 
60,000      1.000 
37,300     3.000 

20          50          38 
600                 22,000 

38 

10,000 

7,000 

1,500 

1,700 

1,000 

700 

800 

40 

100 

7,200 

•6,300 

•9,000 

600 

580 

600 

100 
6,000 
9.600 
7,500 
*300 
1,800 
2,400 
2.500 
2,500 

2,000 

5.000 

1.200,000 

J37.000 

J660,000 

15,000 

15,000 

180,000 

4,763 

104,700 

1,512,700 

157,100 

977,200 

92,680 

76,805 

289,560 

7,550 

15,330 

2,300 

532,210 

5,330 

83,300 

320,300 

6,430 

43,110 

48,158 

134,480 

106,470 

39,460 

88.200 

27.500 

$        52,393.00 
10,470.00 

Lbs. 

1.800  23,000 
3,600  *6,000 
2,400   '6,000 
180     4,800 
600|    4,800 
360  •  18000 
600 

9,800 
5,200 
4,650 
1,206 

175 
1,100 

500 

1,100 

50 

1,450 

1,400 

64,289.75 

Irish  Potatoes 
Sweet  Potatoes 

Grits 

Lbs. 
Lbs. 
Lbs. 

Lbs. 
Lbs. 

24.000 

1,150 

9,600 

10,250 

18,300 

700 

160 

10 

8,350 

6,000 

4,000 
300 

1,000 
600 

1,000 

360 

400 

600 

50 

7,069.50 
19,544.00 

9,268.00 

384.25 

11.582.40 

Lbs. 
Lbs. 
Lbs. 
Lbs. 
Lbs. 
Lbs. 
Lbs. 
Lbs. 

1,000 
540 
150 

1,000 
350 
400 

5,100 
225 
450 
100 

1,000 
500 
600 

830.50 

2,100 

220 
240 

150 

10.000 

5.365.50 

1,380.00 

Heal 

36,000 

360 

30 

6,000 



950 

7,500 
•100 
4,500 
•2,500 
2,500 
•400 
1,800 
5,000 
1,000 
1,200 
1,400 
1,500 

420,000 

18,500 
50,000 

2,000 
25,000 
23,000 
50,000 
60,000 

2,000 
25,000 
26,000 

159,663.00 
1,972.10 

Compound  Lard 
Fresh  Meat 

Fish 

22.000 

8.000 

3,000 

950 
4,100 

24,690.00 

36,300!    10,000 

400[         225 

•5,200|         700 

3.500    t4,600 
27,000     13,000 
10,000      6,000 

9,600       6.100 

800 
100 
100 
300 

1,800 
200 
600 

5,000 

500 

60 

60 

180 

1,080 

120 

360 

3,000 

6,000 

9,000 
120 

1,000 
180 

3,400 

1,250 
100 

1,000 

57,654.00 
964.50 

Syrup 
Coffee 
Sugar 

Salt 

Fvaporated  Fruit 

Canned  Fruits  and  Vegetables 

Gals. 
Lbs. 
Lbs. 
Lbs. 
Lbs. 
Lbs. 
Lbs. 

•1,700 

48 

2,400 

4,800 

400 
250 
1,100 
600 
300 

28,021.50 

14,447.40 

13,448.00 

1,064.70 

7,892.00 

•9,000 

8,000 

1,000 

6,000 

800 

8,820.00 
19,250.00 

Total  Main    li  iirU  8  of  Food 



$520,464.10 

Coal 

Tons 
Doz. 
Doz. 
Lbs, 

i  !a  >es 

ases 
i  lals. 
Gals. 

*8,600 

175 

12 

1,060 
80 
16 

960 

28 

4 

250 

75 
4 
1 

45 

815 
8 
8 

200 

350 

100 

40 

10 
6 

2,500 

80 

10 

14,545 

418 

67 

450 

459 

961 

980 

7,600 

7,825 

65,452.50 

Broon 

Mops 

3 
1 

20 
2 

6            4 
4             3 

3,762.00 

469.00 

9.00 

100 

200 

10 

1,000 

800 

1" 

36 

6 
5 

4 

4 

1 

100 

60 
6 
6 

36            2 

7           12 
6             1 

3 

2 

1 

200 

400 

900 

2,000 

1,000 

3,213.00 

Soap 

115          180 

30 

6 

400 

1,200 

4,805.00 

Washing  Powder 
Gasoline 

34            14             1 
2,500       1.000        6001 

3,920.00 
2,014.00 

400 

3,100     1,200 

20 

5| 

100 

1,408.50 

rota!  Main  Articles  Supply   ... 

$85,053.07 

Cotton 

Bales 
Yards 
Doz. 
Doz. 

50,000 

210 

750 

900 

1,000 

4,550 

5,300 

25,000 
140 
250 
350 

1,850 
1,600 

| 



•3,500 

•45,000 
2,600 
1,250 
1,500 

3,500 
130,930 
3,068 
2,443 
3,315 
1,198 

16,760 
8,180 
6,500 

10,800 
1,780 
6,160 

12,200 
140 

19,700 
2,400 
1.100 

577,500.00 

Sheeting  and  Domestics 
Underwear 

3,4001       800 

30!         18 

90          18 

150        100 

20 

480 
10 
10 
20 
12 
60 
60 

5,000 

25 

75 

100 

600 

200 

150 

300 
35 

26,186.00 
9,204.00 

Hosiery 

4,886.00 

Blankets 
Table  Cloth 

Each 

Yards 
Pairs 

75 

50 
50 

20 
16 

50 
100 
200 

9,945.00 
718.80 

Shoes 

700 

400 

4,000 

100 
100 

9,300 

54,470.00 
2,454.00 

Toweling 

Yards 
Yards 
Pairs 

500 

100 

120 

Uniform  Cloth 

2,500 

1,950.00 
16,200.00 
2,670.00 
3,080.00 
6,100.00 
2,520.00 
3,940.00 
288.00 
2,200.00 

Pants 

450 

700 

1,000 

500 

50 

12.500 

1,500 

100 

400 

150 

70 

450 

180 

90 

400 

9,500 

750 

5,000 

9,500 

40 

Coats 

Each 
Each 

Hats  and  Caps 

Shirts 

Each 

1,800 

50 

6,000 

Overalls 

Doz. 

Ginghams 

Yards 

750 

450 

Calico 

Yards 

600 

300 
1,000 

Women's   Dresses 

Each 

rota!  Main  Articles  Cloth  £  Clothing 

724,311.73 

Grand  Total  Main  Articles  of  Co 

MSUMPTIO 

N 



1 

$1,329,833.90 

tBoys'  Industrial  School  uses  cereal  coffee. 
^Indicates  items  grown  at  institution. 


21 

office,  and  not  carry  the  name  of  the  temporary  officer. 

Respectfully  submitted, 

State  Board  of  Control  and  Economy, 

W.  D.  Nesbitt, 

Chairman. 
W.  L.  Lancaster, 

Associate. 
W.  C.  Caldwell, 

Secretary. 


Reform 
School 

School 
for  Deaf 

School 
for  Blind 

Negro  Deaf 
and  Blind 

Old 
Soldiers 

Convict 
Department 

Total  Each 
Article 

Total 
Value 

50 

38 

38 

40 

100 

2,000 

4,763 

$   52,393.00 

22,000 

10,000 

100 

6,000 

5,000 

104,700 

10,470.00 

,,000 

9,800 

7,000 

7,200 

9,600 

1,200,000 

1,512,700 

64,289.75 

»,000 

5,200 

1,500 

*6,300 

7,500 

137.000 

157.100 

7  0fiQ  £0 

aim  county  institutions  snouia"  be  standardized  by  requir- 
ing merely  the  name  of  the  department  or  bureau  and  the 


21 

office,  and  not  carry  the  name  of  the  temporary  officer. 

Respectfully  submitted, 

State  Board  of  Control  and  Economy. 

W.  D.  Nesbitt, 

Chairman. 

W.  L.  Lancaster, 

Associate. 

W.  C.  Caldwell, 

Secretary. 


22 

(A)— POPULATION. 

Date  Em- 
Institution                      Reported  Inmates  ployees     Total 

Bryce  Hospital  6/21       *1411  150         1561 

Mt.  Vernon  Hospital 5/31           738  100           838 

Boys  Industrial  School 4/1             318  30           348 

State  Training  School 4/25            47  7             54 

Mercy  Home  Ind.  SchooL.5/5               30  3             33 

Negro  Reform  School 5/27           274  9           283 

School  for  the  Deaf 4/23         f  165  9           174 

School  for  the  Blind 4/24             97  16           113 

Sch'l  for  Negro  D.  &  B....4/24             48  14             62 

Old  Soldiers'  Home 4/23             98  8           106 

Convict  Department  6/25         2200  250         2450 

Total ; 5426  596         6022 

Note:   *  Includes  113  paying  patients. 
f For  scholastic  year  only. 

(A)— ESTIMATED  MONTHLY  EXPENDITURES 

AND  AMOUNTS  DUE  JUNE  1ST. 

(Expenditure  in  excess  of  appropriations.) 

Monthly  In  Arrears 

Institution                                   Expenses  June  1st. 

Bryce  Hospital  $28,000.00  '■' 

Mt.  Vernon  Hospital 16,000.00 

Boys  Industrial  School 4,200.00  10,000.00 

State  Training  School 800.00  1,800.00 

Mercy  Home  Iudustr'l  School          500.00  1,900.00 

Negro  Reform  School 2,500.00  4,000.00 

School  for  Deaf 3,500.00 

School  for  Blind 2,000.00  I          11,500.00 

School  for  Negro  Blind  &  D.       1,000.00. 

Old  Soldiers'  Home 1,800.00  500.00 


$30,000.00 


Total  Monthly  Expenses $60,300.00 

In  Arrears  $59,700.00 


23 


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